Police workforce, and Wales, as at 30 September 2019

Intro C Contents

This release is a mid-year update of the Police workforce, 1 Introduction ...... 2 England and Wales publication series, containing information on police workers in post on 30 September 2019 in. We are 2 Police workforce, as at 30 seeking users views on extending the coverage of future September 2019 ...... 3 releases to include the National Crime Agency workforce (see Annex A). 3 Experimental statistics on Misconduct and criminal investigations .. 7 A separate information note has been published alongside this release to outline our plans to report on progress with the Annex A Proposal to extend the recruitment of an additional 20,000 officers in England and coverage of this statistical release ...... 16 Wales by end of March 2023.

Police workforce as at 30 September 2019 - 124,784 officers as at 30 September 2019 in the 43 territorial police forces in England and Wales. - An increase of 1.9% on September 2018 (122,406 officers) - Following a decline between 2009 and 2017, the officer numbers have increased. Date published: 30 January 2020 3,000 2,122 2,378 2,000 Frequency of release: 948 1,000 477 Biannual 0 Forthcoming release: -1,000 -101 -1,293 -930 Home Office statistics release -2,000 -1,504 calendar -3,000 -2,503 -2,715 -4,000 -3,469 Home Office responsible statistician: -3,999 -5,000 John Flatley -6,000 Press enquires: Magnitude of change of Magnitude -6,012 -7,000 [email protected] 020 7035 3535

Public enquires: [email protected] As at... v.uk Total workforce (officers, staff, Police Community Support Officers, designated officers and traffic wardens) were at 204,815 FTE on the same date, an increase of 2.2% on the previous year.

Misconduct and criminal investigations (Experimental statistics) - 2,362 cases assessed as misconduct or gross misconduct in the year ending March 2019, of which proceedings brought in 1,373 cases. Police workforce, England and Wales, 30 September 2019

1 Introduction

1.1 GENERAL INTRODUCTION

This release is a mid-year update of the Police workforce, England and Wales publication series. It contains statistics on the numbers of police officers, police staff, police community support officers (PCSOs), designated officers, special constables and police support volunteers (PSVs) in post on 30 September 2019 in the 43 police forces of England and Wales and the British Transport Police (BTP)1. This release also contains experimental statistics on misconduct and criminal investigations for the year ending 31 March 2019.

Unless otherwise stated, total workforce figures quoted in the bulletin include those on career breaks or other forms of long-term absence, and include those seconded in to police forces from other forces or central services (e.g. the Home Office, the National Crime Agency). The workforce figures in this release are all presented on a full-time equivalent (FTE) basis unless indicated otherwise. Headline figures are available in the data tables.

We are proposing to expand the coverage of these statistics to include the workforce of the National Crime Agency. Further details can be found in Annex A, and we would welcome comments from users. Any changes to the coverage of this statistical series will be made in the July edition of this release (covering the situation as at 31 March 2020).

The data in this release can be found in the Police workforce, England and Wales, 30 September 2019: data tables, and the User Guide to Police Workforce Statistics contains further information including a glossary, conventions used, and other background information.

1.2 NATIONAL STATISTICS STATUS

These statistics have been assessed by the UK Statistics Authority to ensure that they continue to meet the standards required to be designated as National Statistics. This means that these statistics meet the highest standards of trustworthiness, impartiality, quality and public value, and are fully compliant with the Code of Practice for Statistics.

The Home Office worked closely with the UK Statistics Authority to improve information on the quality and limitations of the various datasets, and the ways in which the Home Office engages with users of the statistics. This is documented in the user guide, which is published alongside this release.

This release also contains data on misconduct and criminal investigations for the year ending 31 March 2019. These data in this section of the release have been designated as Experimental Statistics, to acknowledge that further development will take place in the coming years.

1 Data for the British Transport Police are largely excluded from analysis in this report, their data can be found in the accompanying data tables.

2 2 Police workforce, as at 30 September 2019 2 Police workforce, as at 30 September 2019

This release is a mid-year update of the Police workforce, England and Wales publication series, containing information on police workers in post on 30 September 2019 in England and Wales. A separate information note has been published alongside this release to outline our plans to report on progress with the recruitment of an additional 20,000 officers in England and Wales by the end of March 2023.

There were 204,815 workers (FTE) employed by the 43 territorial police forces in England and Wales on 30 September 2019, an increase of 4,354 (or 2.2%) compared with a year earlier. The size of the workforce (officers, staff, designated officers, Police Community Support Officers and traffic wardens) has been increasing, from 200,461 as at 30 September 2018, to 202,023 as at 31 March 2019, to 204,815 in the latest figures.

In addition, as at 30 September 2019 there were 10,039 special constables (headcount) and 7,740 police support volunteers (PSVs)2 (Table 2.1).

Table 2.1: Police workforce1,2 as at 30 September 2018, 31 March 2019, and 30 September 2019, England and Wales Change in 12 months 30 Sep-18 to 30 Sep-19 30-Sep-18 31-Mar-19 30-Sep-19 Number Percentage

Police officers 122,406 123,171 124,784 2,378 1.9%

Police staff and 68,258 69,304 70,737 2,480 3.6% designated officers3

PCSOs 9,791 9,547 9,292 -499 -5.1%

Total workforce2 200,461 202,023 204,815 4,354 2.2%

Special constables 11,029 10,640 10,039 -990 -9.0% (headcount)4

PSVs (headcount)4,5 8,131 7,670 7,740 -391 -4.8%

Source: Workforce Table 6

Notes: 1. Excludes British Transport Police and secondments to central services. 2. Total workforce includes a small number of traffic wardens. Figures on the number of traffic wardens quoted in this release are very small as police forces have mostly transferred these duties to local authorities. Special constables, as volunteers, have been excluded from this count. 3. Designated officers and police staff have been combined as some forces are unable to provide data on designated officers separately. However, where available, a breakdown of these figures can be found in the data tables. 4. Special constables and PSVs do not have contracted working hours so their numbers are provided on a headcount basis rather than FTE.

2 Individuals who by choice put their time, experience, knowledge and skills at the disposal of the force without expectation of compensation or financial rewards, expect for the payment of pre-determined out of pocket expenses.

3 Police workforce, England and Wales, 30 September 2019

As at 30 September 2019, there were 124,784 police officers in the 43 territorial police forces in England and Wales, a 1.9% increase from 122,406 police officers as at 30 September 2018. Figure 2.1 shows the long-term trend in police officer numbers.

Figure 2.1: Number of police officers1 as at 30 September 2006 to 2019, England and Wales

160,000

140,000

120,000 144,353 142,232 141,850 141,385 141,284 135,838 131,839 128,370

100,000 127,077 125,574 124,784 122,859 122,406 121,929

80,000

60,000 Number of police officers police of Number

40,000

20,000

0

As at...

Source: Workforce Table 6

Notes: 1. Excludes BTP and secondments to central services.

Police officer numbers have fallen by 19,569 (14%) since the peak in 2009, when there were 144,353 officers, and the increase between September 2017 and September 2019 was the second year on year increase since 2009, showing that the previous downward trend in officer numbers has ceased, and we are now seeing an increase in officer numbers. In addition, the British Transport Police employed 2,984 police officers, whilst a further 381 police officers were seconded out to central services3.

3 Secondments to central services are secondments to central government, e.g. the Home Office, Her Majesty’s Inspectorate of Constabulary and Fire & Rescue Services (HMICFRS), or the National Crime Agency (NCA).

4 2 Police workforce, as at 30 September 2019

Across the 43 territorial police forces in England and Wales, police officer numbers rose by 2,378 between 30 September 2018 and 30 September 2019 (Figure 2.2). This is the largest year-on-year increase in a decade (There was an increase of 2,612 officers between March 2008 and March 2009). PCSO numbers fell by 499 over the same period to 9,292 PCSOs, continuing the recent downward trend, and numbers of police staff and designated officers increased by 2,480 (or 3.6%) over the same time period.

Figure 3.2: Change in the number of police officers1 as at 30 September 2007 to 2019, compared with the previous year, England and Wales 3,000 2,378 2,122 2,000 948 1,000 477

0 -101 -1,000 -930 -2,000 -1,293 -1,504 -3,000 -2,503 -2,715 -4,000 -3,469 Magnitude of change of Magnitude -3,999 -5,000

-6,000 -6,012 -7,000

As at...

Source: Workforce Table 6

Notes: 1. Excludes BTP and secondments to central services.

5 Police workforce, England and Wales, 30 September 2019

Of the 43 territorial police forces in England and Wales, 11 recorded reductions in police officer numbers in the year ending 30 September 2019 compared with 12 months earlier (Figure 3.3).

Figure 3.3: Change in the number of police officers as at 30 September 2019, compared with 30 September 2018, by police force area

Warwickshire West Mercia Essex Kent North Yorkshire Merseyside Cambridgeshire Gloucestershire Thames Valley Bedfordshire Northamptonshire Suffolk Norfolk London, City of Sussex Hertfordshire Greater Manchester Leicestershire England and Wales Avon & Somerset South Wales North Wales West Yorkshire Humberside Devon & Cornwall Lancashire Dorset Cheshire Cleveland South Yorkshire Cumbria Wiltshire Durham Surrey Staffordshire Northumbria Nottinghamshire West Midlands Dyfed-Powys Gwent Hampshire Lincolnshire -5 0 5 10 15 20 Percentage change Source: Workforce Table 1

6 3 Misconduct and criminal investigations

3 Experimental statistics: Misconduct and criminal investigations

3.1 INTRODUCTION

This chapter covers data from the 43 territorial police forces in England and Wales on the number of cases of police misconduct and criminal investigations involving officers and staff, in the year ending 31 March 2019. It covers the number of cases received and assessed by forces as misconduct or gross misconduct, as well as the outcomes at misconduct meetings, hearings, special case hearings and criminal investigations.

In carrying out their duties, police officers and police staff are expected to maintain the highest standards of professional behaviour. These standards are set out in the Police (Conduct) Regulations 2012 and apply to all police officers and special constables, with equivalents in local policy for police staff. The College of Policing’s Code of Ethics sets out the principles, values and behaviour expected of everyone who works in policing.

The police discipline system is designed to deal with circumstances where it is alleged the standards of professional behaviour have been breached. This could come via a complaint from a member of the public (referred to here as a “public complaint”) or from an internal misconduct allegation (referred to as a “conduct matter”). In addition, a case could arise from an incident such as a death or serious injury following contact with the police (e.g. following a police pursuit or a death in custody).

When a force receives a public complaint, or a misconduct matter comes to their attention, they decide as to whether the alleged misconduct could be a breach of the standards of professional behaviour set out in the regulations. Where behaviour is suspected of falling short of these standards, it is the responsibility of the police force to conduct a formal investigation or refer the matter to Office for Police Conduct (IOPC), formerly the Independent Police Complaints Commission (IPCC), depending on the nature of the case.

At the end of the investigation, the investigator will decide whether the individual has a case to answer for misconduct or gross misconduct. If there is a case to answer a decision will then be made about what form of disciplinary proceedings will take. This might, in serious cases, involve a formal disciplinary hearing at which the person may be dismissed, receive a final written warning, or a formal reprimand (“management advice”).

Where misconduct proceedings are brought, this will either be a referral to a misconduct meeting (in the case of misconduct) or a misconduct hearing (in the case of gross misconduct or where the officer already has received a final written warning for misconduct). Some cases are referred to special case hearings, which is a fast-tracked process when evidence appears compelling and it is in the public interest for the matter to be resolved without delay.

7 Police workforce, England and Wales, 30 September 2019

In the vast majority of cases, hearings arranged under the Police (Conduct) Regulations 2012 are now held in public. This reform was introduced in May 2015 to increase the transparency of the police discipline system. Hearings may be held in private when necessary; for example, where there are sensitive national security matters to be discussed or the involvement of vulnerable individuals. An independent legally-qualified chair makes the decision whether or not to hold all or part of the hearing in private based on specific criteria set out in the Regulations. The proceedings and details of the hearing are published on the force’s website.

A decision is made at the end of the process as to whether the individual has been found to have committed misconduct or gross misconduct, and, if so, the appropriate sanction.

A simplified flow chart of the misconduct process can be found on page 10 (Figure 3.1).

Further information about complaints and the discipline system can be found in statutory guidance issued by the Home Office and the IOPC. The User Guide to Police Workforce Statistics also contains further information on the misconduct process.

3.2 HOW TO USE THESE DATA

Data are collected by the Home Office from each of the Professional Standards Departments (PSDs) in the 43 police forces in England and Wales. The PSDs are responsible for upholding and improving professional standards in the force, and for investigating complaints about police officers and staff.

Officer and staff data

Different discipline systems exist for police officers and police staff (which includes civilian staff, PCSOs, designated officers and traffic wardens). Police officers and special constables are subject to the regulations as set out in the Police (Conduct) Regulations 2012 whereas complaints and conduct matters involving staff are covered by local policies within police forces.

Therefore, while misconduct and gross misconduct cases against police officers and special constables tend to be dealt with and recorded in a similar way by most forces (with some exceptions), there are often different processes and recording practices for staff cases of misconduct and gross misconduct. Data relating to staff cases in this chapter should therefore be used with caution; they may be incomplete and not directly comparable across forces.

Local resolutions

When a force receives a public complaint, or when an internal conduct matter arises, they decide as to whether the conduct meets the requirements for a formal investigation. In the case of public complaints, some do not meet the criteria for an investigation and are resolved locally without referral to disciplinary proceedings.

8 3 Misconduct and criminal investigations

Some forces do not record a final assessment for cases that are resolved via a local resolution. Therefore, these statistics now only contain data for cases that were finally assessed as misconduct or gross misconduct to ensure consistency across forces.

Experimental Statistics status

Due to the provisional and evolving nature of this dataset, these statistics have been designated as Experimental Statistics. The Police (Conduct) Regulations, which deal with the police discipline system, will be amended as part of wider police integrity reforms and will come into force on 1 February 2020. These amendments include changes to sanctions and outcomes which will be reflected in changes to this dataset. Some changes to the police discipline system have already been made, including the introduction of the Police (Conduct, Complaints and Misconduct and Appeal Tribunal) (Amendment) Regulations 2017 and Police Barred List and Police Advisory List Regulations 2017, which took effect on 15 December 2017. These extend the disciplinary provisions to former officers and introduce a barred list which prevents those who have been dismissed taking up other roles within policing.

9 Figure 3.1: The process for investigating potential Public complaint misconduct and bringing disciplinary proceedings

Internal Death or Serious No formal investigation Does it require allegation Injury involving No investigation? police contact Local resolution

Yes

Conduct matter Investigation by the force or IOPC Investigation phase phase Investigation

Misconduct Gross misconduct Not misconduct

Management Misconduct Misconduct Special case No Management Unsatisfactory action meeting hearing hearing action action performance procedure

Findings at misconduct meeting Findings at misconduct hearing Findings at special case hearing - Misconduct not found - Misconduct not found - Misconduct not found - Misconduct - Misconduct - Misconduct - Gross misconduct - Gross misconduct

- Proceedings discontinued - Proceedings discontinued - Proceedings discontinued - No action - No action - Case dismissal - Not proven - Not proven - Return case to appropriate authority

- Management advice - Management advice - Remitted back to misconduct hearing Outcomes - Written warning - Written warning - Final written warning - Final written warning - Final written warning - Final written warning extension - No further action - Final written warning extension - Dismissal with notice - Dismissal with notice - Dismissal without notice - Dismissal without notice - Demotion (staff only) 10

10 Police workforce, England and Wales, 30 September 2019

3.3 CASES RECEIVED AND FINALLY ASSESSED AS MISCONDUCT OR GROSS MISCONDUCT

Of the complaint and conduct matter cases finalised by the 43 territorial police forces in England and Wales in the year ending 31 March 2019, 2,362 were considered to be matters involving misconduct or gross misconduct.

Of these 2,362 cases: • Misconduct proceedings were brought in 1,373 cases, of which: o 735 were assessed as misconduct and referred to a misconduct meeting. o 638 required the bringing of a misconduct hearing or special case hearing (where the force considered there was sufficient evidence and public interest grounds for the case to proceed without delay) as they related to matters that could lead to the dismissal of the individual. • The remaining 989 did not require the bringing of misconduct proceedings but resulted in 'management action' which is ‘action or advice intended to improve the conduct of the officer concerned’.

Figure 3.2 shows the number of cases that resulted in management action, meetings or hearings (including special case hearings), for both officers and staff.

Figure 3.2: Number of cases received and finally assessed as relating to misconduct or gross misconduct, year ending 31 March 20191

1200

1000 53 936 800 143 600 592 Staff 400 Numberof cases 192 Officers

200 298 148 0 Management Meeting Hearing Special case action hearing Case finally assessed as...

Source: Misconduct Table 1

Notes: 1. Members of police staff are not subject to the same regulations as officers. Staff data should be used with caution, as they may be incomplete and not directly comparable across forces.

11 Police workforce, England and Wales, 30 September 2019

3.4 OUTCOMES OF MISCONDUCT MEETINGS AND HEARINGS

Misconduct meetings

A misconduct meeting is held where there is a case to answer in respect of misconduct, and where the most serious outcome would be a final written warning. In the year ending 31 March 2019, 700 officers and staff attended a misconduct meeting.

The most common outcome at a misconduct meeting for officers was management advice, with 32% of meetings involving officers resulting in this outcome. The next most common outcome was a written warning (30% of meetings). For staff, the most common outcome following a misconduct meeting was a written warning (55%), followed by management advice (25%). The most serious outcome at a misconduct meeting is a final written warning (or final written warning extension). In the year ending 31 March 2019, 12% of officer cases and 10% of staff cases resulted in this outcome.

For officers, there was also a noticeable difference between the outcomes of cases following a public complaint and cases following an internal conduct matter. Conduct matters were more likely to result in more serious action, such as written warnings and final written warnings, whereas public complaints most frequently resulted in management advice, or the case was not proven.

In 22% of all cases, the outcome was either no action, the accusations were not proven, or the proceedings were discontinued (Figure 3.3).

Figure 3.3: Outcomes of misconduct meetings, year ending 31 March 20191 Public complaint Conduct matter 200 Officers 180 160 140 120 100 80 Staff 60

Numberof cases 40 20 0 proven proven Proceedings Proceedings Written warning Written warning No further action No further action discontinued/not discontinued/not (and extensions) (and extensions) Management advice Management advice Final written warning Outcome Final written warning Source: Misconduct Table 4

Notes: 1. The total number of outcomes may not always exactly match the total number of cases assessed. This can be for a range of reasons, including where the officer or staff member resigns ahead of the meeting.

12 3 Misconduct and criminal investigations

Misconduct hearings

A misconduct hearing is held when there is a case to answer in respect of gross misconduct, or where the police officer has a live final written warning and there is a case to answer in respect of a further act of misconduct. There were 261 such hearings involving officers and 149 hearings involving staff in the year ending 31 March 2019.

As might be expected, for both officers and staff, conduct matters led to misconduct hearings more frequently than public complaints. For officers, 47% of misconduct hearings resulted in dismissal, and a further 20% resulted in a final written. For staff, 45% of hearings resulted in dismissal and 40% in a final written warning.

Figure 3.4: Outcomes of misconduct hearings, year ending 31 March 20191

Public complaint Conduct matter 120 110 100 90 Officers Staff 80 70 60 50 40

Numberof cases 30 20 10 0 Dismissal Dismissal Written warning Written warning No further action No actionfurther Proceedings Proceedings (and extensions) (and extensions) Management advice Management advice Final written warning Final written warning Outcome discontinued/not proven discontinued/not proven

Source: Misconduct Table 5

Notes: 1. The total number of outcomes may not always exactly match the total number of cases assessed. This can be for a range of reasons, including where the officer or staff member resigns ahead of the hearing.

Special case hearings

A special case hearing is a fast-tracked misconduct hearing where the force considers there is already sufficient evidence and public interest grounds for the officer to be dismissed without delay. In the year ending 31 March 2019, 122 officers faced a special case hearing, with 102 (84%) leading to dismissal. Three cases were discontinued, one case was returned to the Appropriate Authority, and the remaining 16 cases resulted in a final written warning.

13 Police workforce, England and Wales, 30 September 2019

In total, in the year ending 31 March 2019, 225 officers and 67 staff members were dismissed following a hearing or special case hearing.

Private hearings and special case hearings

Hearings convened under the Police (Conduct) Regulations 2012 are now held in public in the majority of cases. Hearing’s may be held in private if it is more appropriate, for example where there are sensitive national security matters to be discussed at the hearing or where there is the involvement of vulnerable individuals. In the year ending 31 March 2019, 44 misconduct hearings were held in private and 39 special case hearings were held in private.

3.5 CRIMINAL INVESTIGATIONS

The Home Office also collects data on the number of criminal investigations involving officers and staff. In the year ending 31 March 2019 there were 136 criminal investigations, 119 of which related to police officers and 17 to police staff. The majority (92%) of these followed an internal conduct allegation.

Criminal investigations and proceedings are distinct from misconduct proceedings, as there are different tests and thresholds applied. For example, while a criminal prosecution relies on a burden of proof beyond all reasonable doubt, misconduct proceedings are in line with civil proceedings and rely on the balance of probabilities. This means that for criminal cases which do not result in conviction or are unsuitable for criminal prosecution, the individual can still be subject to misconduct proceedings and potentially be dismissed. In addition, where cases do result in criminal conviction, the individual can also be subject to misconduct proceedings. However, these are often paused while criminal proceedings are ongoing to avoid any potential prejudice to the proceedings.

Of the criminal investigations involving officers, 67% resulted in the officer being found (or pleading) guilty, 28% resulted in a not guilty verdict, 2% in the officer receiving a caution, and in the remaining 3% of cases proceedings were discounted or no evidence was offered. For staff, 76% of cases resulted in the individual being found (or pleading) guilty and 12% resulted in a not guilty verdict. The remaining 12% of cases resulted in a caution.

3.6 ADDITIONAL DATA

For the reasons mentioned above, data on cases relating to public complaints in this chapter should not be used to measure the total volume of complaints received by the police in England and Wales. A more reliable data source for the total volume of complaints is published by the IOPC.

The IOPC collects and publishes data on complaints against the police in England and Wales but is collected on a different basis to the data covered in this chapter. The IOPC data cover the number of complaints, whereas data in this chapter relate to number of workers. For example, in the event of one complaint being made against three officers, the IOPC would count one complaint, whereas three cases would be counted in the Home Office data. The opposite is also true, if four complaints were made about the same incident

14 3 Misconduct and criminal investigations involving one officer, four complaints would be counted by the IOPC but just one case recorded in the Home Office statistics.

The latest IOPC publication can be found here: https://www.policeconduct.gov.uk/research- and-learning/statistics/complaints-statistics

15 Police workforce, England and Wales, 30 September 2019

Annex A Proposal to extend the coverage of this statistical release

Home Office statisticians are seeking users views on the coverage of the ‘Police workforce, England and Wales’ statistical releases.

Currently, the coverage of the Police Workforce statistics is restricted to officers and staff working for the 43 territorial police forces in England and Wales, and the British Transport Police.

The collection does not cover those working for the National Crime Agency (NCA) which is the national body leading on dealing with serious and organised crime. The NCA is an Executive Non-Departmental Public Body sponsored by, but (like territorial police forces, operationally independent from, the Home Office.

“NCA officers” comprise a mix of staff including some with the powers of a constable, some have other statutory powers (e.g. immigration) and civilians responsible for assisting investigations, intelligence analyses and other support functions.

We propose to extend the coverage of our Police Workforce statistical bulletin to cover “NCA officers” to provide a more complete picture of the size of the police workforce.

As not all “NCA officers” have the power of a constable we propose to add those with such powers to our headline totals of police officers in England and Wales. Other ‘NCA officers’ will be included under other police staff. The alternative option is to report on all NCA officers separately from headline totals for police officers and staff working for the territorial forces in England and Wales. We welcome users views on these proposals.

Comments should be sent to [email protected] by 31 March 2020.

Please also provide the following details: 1) Is your response your views as an individual user or on behalf of an organisation?  Own views  Organisation (please specify)

2) What sector do you work in? (Please select 1 answer only)

 Central government department or public body  Police service  Local authority  Academic or research  Charity and voluntary  Commercial or private sector  Media  International organisation  Other (please specify)

16 Annex A: Proposal to extend the coverage

3) May we contact you to discuss your response to this consultation? This may be to follow up on any specific points we need to clarify.

Name: Role or occupation: Organisation: Email: Telephone:

17 Statistical Bulletins are prepared by staff in Home Office Statistics under the National Statistics Code of Practice and can be downloaded from GOV.UK:

https://www.gov.uk/government/organisations/home -office/about/statistics

Home Office Statistical bulletin 02/20

ISBN: 978-1-78655-967-8

ISSN: 1759-7005

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